The politics of ambiguity: Local strategies in China's energy policy and governance

Abstract

This study investigates how local governments in China navigate energy efficiency and decarbonization policies, focusing on power rationing events in Y City and S City during 2020 and 2021. It introduces the concept of the “politics of ambiguity” to analyze how local governments exploit policy ambiguity—stemming from central mandates, resource constraints, and bounded rationality—to adapt and innovate under an authoritarian environmental governance framework. Y City's reactive, campaign-style governance highlighted how severe ambiguity can lead to inefficiencies and social disruptions. In contrast, S City's proactive, collaborative strategy demonstrated how ambiguity, when leveraged effectively, fosters stakeholder engagement, innovation, and more sustainable policy outcomes. This comparative analysis reveals the dual nature of ambiguity as both a constraint and an enabler, emphasizing its dynamic and iterative role in balancing central oversight with local discretion. The findings highlight the need for governance frameworks that support local adaptation and stakeholder participation, offering insights into China's energy transition and broader authoritarian governance contexts. By exploring ambiguity as an inherent feature of governance, this study sheds light on how local governments navigate central-local dynamics and adapt policy implementation strategies to address the challenges of energy transition within complex and evolving environmental governance systems.